Churchill Downs Gaming Parlor for Virginia’s Henrico County Moves Forward With Youngkin Veto

Posted on: March 27, 2025, 12:27h. 

Last updated on: March 27, 2025, 01:32h.

Devin O'Connor @CasinoorgDevinO Read More
Expertise: Asia Pacific Gaming, Commercial Gaming, Legislation, Politics.
  • Churchill Downs will open another HHR facility in Virginia this year
  • HHR stands for historical horse racing machines, slot-like gaming terminals
  • Roseshire is planned for Henrico County

Churchill Downs plans to open a multimillion-dollar gaming parlor in Virginia’s Henrico County later this year.

Churchill Downs Virginia HHR Roseshire
A rendering of Churchill Downs’ Roseshire Gaming Parlor in Virginia’s Henrico County. Virginia Gov. Glenn Youngkin has vetoed a budget bill provision that would have required a local referendum to allow the Roseshire to open. (Image: Churchill Downs, Inc.)

The historical horse racing (HHR) facility, called the Roseshire Gaming Parlor, cleared a possible legislative roadblock this week with Virginia Gov. Glenn Youngkin (R) vetoing a budget line item that would have required county voters to sign off on the project. Churchill is converting a former retail store at the Staples Mill Shopping Center into a “high-end gaming boutique” with slot-like HHR machines, a wine bar, and live entertainment.

That was a site that they had agreed with the county. They received all the permits they needed to start building. They had invested $5 million in this new site, and then someone came and tried to change the rules on them,” Youngkin said of his veto.

Churchill Downs issued a statement in response to Youngkin dismissing the budget condition that would have halted the Roseshire’s opening.

“Henrico County has repeatedly confirmed that this project complies with all laws, regulations, and requirements. Henrico County approved a building permit in November 2024 and construction is well underway with more than $5 million invested to date. The vetoed budget language would have sent a very negative message to Virginia businesses that laws and regulations can change without warning even after projects have been approved, permits have been issued, and contracts have been signed. Roseshire is slated to open its doors later this year and we look forward to welcoming guests from across Central Virginia.”

Local Opposition

As Churchill Downs progressed with gaining local permits for its HHR project in Henrico, the county Board of Supervisors adopted a regulation requiring new parimutuel wagering sites to be approved through a local referendum. But since Virginia is a Dillon’s Rule state where state law preempts local regulations, the county couldn’t singlehandedly block the Roseshire development.

The 2018 HHR bill allows gaming machines anywhere parimutuel wagering is permitted. Henrico County voters approved of off-track betting through a referendum in 1992.

A referendum in Henrico 33 years ago approved only live horseracing and off-track betting — not slot machines,” opined state Sen. Schuyler VanValkenburg (D-Henrico). “In other words, the county’s residents approved restaurants with hamburgers and big screen televisions broadcasting live horse races, but now residents are faced with what amounts to be a mini-casino.”

VanValkenburg added that Youngkin “backed an out-of-state gambling corporation over the citizens of Henrico.”

Henrico Supervisor Dan Schmitt, a Republican, said the governor “cast aside Henrico voters’ voices.”

For the General Assembly to override Youngkin’s veto, the parimutuel HHR referendum provision would require a two-thirds majority support in each legislative chamber. 

Virginia HHR Backstory

In 2018, Virginia lawmakers and then-Gov. Ralph Northam (D) authorized HHR machines to generate revenue to save the Colonial Downs Racetrack located between Richmond and Williamsburg in New Kent County. The HHR request came from Revolutionary Racing, a Chicago-based entity controlled by Peninsula Pacific Entertainment (P2E), which agreed to purchase the storied racecourse and continue conducting live racing in exchange for the slot-like gaming machines.

The 2018 bill allowed all counties where parimutuel wagering had previously been authorized through local referendums to house HHR machines at off-track betting facilities operated by the Colonial Downs Group. Churchill Downs acquired P2E and most of its assets, including Colonial Downs, in 2022 for $2.8 billion.

Churchill owns and operates seven off-track betting parlors featuring HHR games under the Rosie’s Gaming Emporium brand in New Kenton, Vinton, Richmond, Hampton, Dumfries, Collinsville, and Emporia. Churchill also runs The Rose Gaming Resort in Dumfries, which has 1,650 HHR machines and a 100-room hotel.